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~ T R O D U C T I O N - - C o l o n e l L . B a r t le t t , J r ., U SA F , M e m b e r o f t h eF a c u l t y, I C A F . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . 1

SPFAKER--~Ir. Edw ard L. Bernays, Couns elor on Public Relati ons. 1GENERA L DISCUSSI ON..... . ...... ......... .......... ......... ..... 9

P u b l i c a t i o n N o . L 5 3 - 8 0I N D U S T R I A L C O L L E G E O F T H E A R M E D F O R C E S

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. R E S T R I C T E Di 1 3 2

Mr. Edwar d L. Bernays, Counse lor on Public Relations, was bor nin Austria, Vienna, 22 Novem ber 1891. He receiv ed his B.S. degree fromCornell University in 1912. He is regarded as America's outstandingcounsel on public relations, a pro fession he was instrumen tal in creatingand naming. In partnersh ip with his wife, Doris E. Fleischman, he hashad a long and diversified practice as public relations counsel since1919, Recently he has just been adjunct professor of public relationsat New York Unive rsity and visiting professor of public relations at theUniver sity of Hawaii. During World War I at the Paris Peace Conference,he served with the U. S. Committee on Public Information. Subsequently,he worked with the War Department on the reemployment of ex-servicemenin 1919, was assistant commissi oner for the U. S. Department of Commerceat the Paris Exposit ion in 1925. He was a member of President Hoover'sEmer gency Committee for Employment in 1930-1931, and of the New YorkState Committee on Discrimina tion in Employ ment in 1942. Since 1942 hehas been a member of the National Public Relations Committee of theAmerican Red Cross. Mr. Bernays is the author of "Crystallizing PublicOpinion," "Propaganda," "Speak Up for Democracy," "Take Your Place atthe Peace Table," and his mos t recent book is "Public Relations." He is aI equent contributor to leading magazines, newspapers, and social sciencejournals. He has been awarded the palm of Officer of Public Instruction(French) in 1926, and the King Christian X Med al (Danish) in 1946. Atpresent, he is a partner in his own firm.

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COLONE L BARTLETT: General Greeley, gentlemen, guests: Ver y soonC o l o n e l B a r n e s w i l l g i v e y o u t h e O r i e n t a t i o n l e c t u r e w h i c h i n t r o d u c e sUnit 12, your final comprehe nsive course. But I think you alre adya p p r e c i a t e t h e c o m pl e x i ty , m a g n i t u d e , a n d n u m b e r o f p r o b l e m s w h i c h a r ei n v o l v e d i n e c o n o m i c m o b i l i z a t i o n . I n a l l o f t h e s e p r o b l e m s t h e r e i so n e c o m m o n e l e m e n t w h i c h d e t e r m i n e s t h e d i f f e r e n c e b e t w e e n w h a t y o u ' dl i k e t o do a n d w h a t y o u a c t u a l l y c a n d o. T h a t c o m m o n a n d l i m i t i n gf a c t o r i s p u b l i c o p i n i o n .

We have aske d our lecturer to discuss the role of public opinion,how the Governm ent can influence and guide it, and the consequence s ofi g n o r i n g o r s e l e c t i n g t he w r o n g t e c h n i q u e f o r d ea l i n g w i t h i t . L i n c o l nsaid, "You can't fool all of the people all of the time." For a suc-c e s s f u l m o b i l i z a t i o n y o u m u s t h a v e a w e l l - i n f o r m e d p u b l i c o p i n i o n s o l i d l yw i t h y o u . z

r

M r . B e r n a y s h a s l e c t u r e d h e r e o n t h re e p r e v io u s o c c a s i o n s . Y o u w h oh a v e r e a d h i s b i o g r a p h y k n o w t h a t h e i s a n a u t ho r , a n e x p e r t o n t h esubject, and it' s his business. His services in this field on behalfo f t h e G o v e r n m e n t a n d t h e R e d C r o s s a r e e v i d e n c e o f h i s k n o w le d g e ." T im e " m a g a z i n e c a l l s h i m j " U n i t e d S t a t e s P u b l i c i s t N u m b e r O n e . "

Mr. Bernays, it is a pleas ure to welcome you again to the Industr ialC o l l e g e o f t h e A r m e d F o r c e s .

MR. HERNAYS: Tha nk you, Colonel. Gentlemen: The more I went intot h e s u b j e c t a s s i g n e d t o me , " G a i n i n g P u b l i c S u p p o r t f o r E c o n o m i c M o b i l i z a -t i o n , " t h e m o r e I f o u n d it b o u n d u p w i t h m a n y o t h e r f i e l d s . R e s e a r c hled only to more study. I have read the available but sketchy literature.I h a v e d i s c u s s e d t h e s u b j e c t w i t h k n o w l e d g e a b l e m e m b e r s o f t he s e v e r a lservices. I also, as I often do, sent a rough draft of my propose d talkt o a n u m b e r o f e x p e r t s a s k i n g f o r s u g g e s ti o n s a n d c o r r e c t i o n s . B u t top r o t e c t t h e s e k i n d a n d h e l p f u l c r i ti c s , l e t m e s a y t h a t th e c o n c l u s i o n sa n d p r o p o s a l s I s h a l l m a k e a r e m y o w n .

I s h a l l o u t l i n e o u r p r e s e n t s i t u a t i o n a n d d i s c u s s t h e a d v a n t a g e sa n d d i s a d v a n t a g e s o f c u r r e n t m e t h o d s o f t r y i n g t o g e t p u b l i c s u p p o rt .T h e n I s h a l l m a k e a f e w b r o a d r e c o m m e n d a t i o n s f o r y o u r c o n s i d e r a t i o n .T h e s e r e c o m m e n d a t i o n s a r e b a s e d o n l o n g e x p e r i e n c e i n a d v i s i n g c l i e n t so f d i v e r s i f i e d i n t er e s t s, i n c l u d i n g g o v e r n m e nt , o n p r o b l e m s o f w o r k i n gw i t h t h e p u b l i c a n d e n l i s t i n g p u b l i c a p p r o v a l .

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, RESTR ICTEDFirst, with your permission, ! shall broa den the subject, "Gaining

Public Support for Economic Mobilizat ion," to include public supportfor all major programs of mobilization. General Eisenhower severalyears ago said: '~ational security is a state of organized readinessto meet external aggression by a quick and effective mobilization ofpublic opinion, trained men, prove d weapons and essential industriesintegrated into the most effective instrument of armed defenses and re-inforced by the support of every citizen in the measure and form neces-sary for the preservation of our way of life." Note that he said"integrated."

The General even then associated public opinion with every formof security, every kind of mobilization. Economic mobilization is notan isolated factor in mobilization; nor is public opinion concerningeconomic mobiliz ation isolated, either. They are inextri cably bound upwith public attitudes towards the whole concept of mobilization fornational strength.

This over-all unresolved problem of public support is so acute todaythat a number of essential activities have been delayed for fear the publicmight disapprove of them or fail to support them. Only recen tly thesecretary of one of the services pointed out to me that public an d con-gressional ignorance of a certain situation was adversely affecting ournational security program.

Now we all know that public opinion is an important considerationin all types of mobilizatio n. Public opinion is never expendable. Itoften helps shape major policies. As many of you have already dis-covered, favorable public opinion is essential to any program of mobiliza-tion in peace and in wartime.

The reasons for this are rooted in our national traditions andhistory. At the risk of repeati ng the obvious, le t me quote Abrah amLincoln, who said: "With public senti ment nothi ng can fail; without itnoth ing can succeed." Our powe r as a nation lies in the freedom, thevitality, and the strength of our convictions. Men who make up theirown minds are stronger and more self-reliant than men whose opinions aref o r c ed u p o n t h e .

But volunta ry public opinion, our kind of public opinion, cann ot bemobilized as smoothly as can men, money, a nd materials. The kind ofpublic opinion we need does not gro w spontaneously. People are condi-tione d to their beliefs, attitudes, and actions by the so ciety they livein, by what they read, see , and hear. Their opinion about the armedforces and o ther phases of mobiliz ation derives from these elements.

It is especially diffic ult to rally public opinion in peacetime.We do not ev en kno w whether it is, indeed, peacetim e we are in today,

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R E S T R I C T E DW h a t e v e r i t i s , w e k n o w o u r G o v e r n m e n t c a n n o t b y - p a s s o r m a n u f a c t u r em a s s p u b l i c o p i n i o n a s t o t a l i t a r i a n g o v e r n m e n t s d o . E v e n i f w e di d,o r c o u l d , r o l l o p i n i o n o u t o n a n a s s e m b l y l i n e , i t w o u l d n o t b e t h ek i n d o f p u b l i c o p i n i o n w e w m l t . T h a t k i n d o f i n d u c e d p u b l i c o p i n i o ni s s u b j e c t t o d a n g e r o u s d e f l a t i o n i n t h e h o t l i g h t o f ~ r u t h . I t i ss h a t t e r ed b y d i s i ll u s i o nm e n t . J u s t r e m o m b e r w h a t h a p p e n e d in N a z iG e r m a n y . M o b i l i z a t i o n i n t h e U n i t e d S t a t e s , t o b e e f fe c t i v e , m u s t h a v et h e v o l u n t a r y s u p p o r t o f p u b l i c o p i n io n .

T o a t t e m p t t o c o e r c e p u b l i c o p i n i o n n o w o r i n th e f u t u r e w o u l d b ea d ra s t i c d e v i a t i o n f r o m t h e s p i r i t u a l i d e a l s o f o u r R e p u b l i c . I t w o u l dd e s t r o y t h e l i b e r t i e s w e a r e f i g h t i n g f o r . I t w o u l d l e a d t o t o t a l i t a r -i a n i s m .

W e a r e a g r e e d t h a t e f f e c t i v e m o b i l i z a t i o n o f d i p l o m a t ic , m i l i t a r y ,p s y c h o l o g i c a l , a n d e c o n o m i c f o r c e s d e m a n d s t h e s t r o n g b a c k i n g o f p u b l i co p i n i on . T h e m o r a l e o f t h e a r m e d fo r c e s m u s t b e b a c k e d b y ~ e m o r a l eo f a l l t h e p e o p l e .

L e t u s c o m m e n t e n e c o n o m i c m o b i l i z a t i o n f o r a m o m e n t - - t h e s u b j e c to f o u r m a j o r i n t e r e s t t o s h o w h o w v i t a l i t i s i n t h a t f i e l d. T h ea t t i t u d e o f w o r k e r s a n d m a n a g e r s d e p e n d s i n p a r t o n t h e c l i m a t e o fp u b l i c o p i n i o n i n w h i c h i t f u n c t i o n s . W h e n t h e p u b l i c i s a p a t h e t i c ,w o r k e r s a n d m a n a g e r s r e a c t b y s l o w i n g t h e i r p a c e . T h i s d e l a y s p r o d u c -t i o n . ~ n e n t h 4 p u b l i c s h a r e s t h e p a t r i o t i c e n t h u s i a s m o f w o r k e r s a n dm a n a g e r s i n t h e m a k i n g o f w a r s u p p li e s , i t h e l p s t o l i m i t i n e f f i c i e n cy ,a b s e n t e e i s m , w a s t a g e o f m a t e r i a l - - a l l i n j u r i o u s t o b u i l d i n g s t r e n g t h .G e n e r a l m o r a l e h e l p s r e l a t i o n s h i p s b e t w e e n m a n a g e m e n t a n d m e n , f o r i na n e f f o r t l i k e o u rs , a m u t u a l i t y o f i n t e r e s t i s v i t a l t o su c c e s s . T h ec i v i l i a n p o p u l a t i o n i s w i l l i n g t o s a v e e s s e n t i a l m a t e r i a l s . T h i s i nt u r n h e l p s t o h o l d d o w n a r i s e i n p r i c e s . W i t h o u t p u b l i c o p i n i o n t os u p p o r t i t, w i t h o u t t h e g o o d w i l l o f t h e p u b l i c a n d o f C o n g re s s , i tw o u l d b e i m p o s s i b l e t o s e c u r e m o n e y a p p r o p r i a t i o n s n e c e s s a r y t o e c o n o m i cm o b i l i z a t i o n .

T h e m o r a l e o f a l l t he s e r v i c e s i n t h i s e c o n o m i c m o b i l i z a t i o n i si n c r e a s e d b y f ai r , c o m p l e te , a n d s k i l l f u l p r e s e n t a t i o n o f f a ct s t o t hep u b l i c a n d o f e f f e c t i v e p e r s u a s i o n .

T h e r e a r e r e a s o n s w h y we u n d e r e s t i m a t e t h e v a l u e o f p u b l i c g o o dw i l l f o r m o b i l i z a t i o n o f a l l k i n d s . B u t t he s e r e a s o n s d o n o t e l i m i n a t et h e d a n g er f r o m u n d e r v a l u a t i ng t h e p o w e r o f t he p u b l ic ' s g o o d w i l l .

H e r e a r e t w o i m p o r t a n t s u c h r e a s o n s .i . A s a p e o p l e a n d a s g o v e r n me n t , w e p l a c e u n d u e e m p h a s i s o n t h i n g s

a s o p p o s e d t o i d e a s . W e s t i l l b e l i e v e a b i g g u n c a n d o m o r e d a m a g e t h a na r e v o l u t i o n a r y i d e a . T h i s i s n o t n e c e s s a r i l y s o . F o r i n s t a n c e, w e

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R E S T R I C T E Dneglect psychological warfare as an important instrument of fore ignpolicy, and we neglect public sup port at home for foreign policy.+We do not apprec iate how much Communists have u sed ideas to advancetheir cause, just as the Nazis did.

2. Historically, before 1914 we had little concern with worldwidemilitary affairs. We felt safe with thousands of miles of water onboth sides of us. The milit ary services constituted only a small self-contained unit in the total United States population. But now that ou rinteres ts are worldwide and danger threatens, the total population isclosel y related to the military. We pay taxes to support the services.Our own sons ar e the military. We de mand a share in running our show.

But while the public feels i t has power, it is quite aware thatit lacks information necessary for intelligent action. On the otherhand, top people i n government and in the services have little apprecia-tion of the value of public good will. And they appear to have littleknowledge o f ho w to cope wit h it, direct it, or develop it.

The y are often unaware that favorable Public opinion is broughtabout through frank discussion of issues by the people. They areoblivious to the fact that the peo ple are unwilling to accept officialauthority unless they are told why. Our officials do not recognize thatpublic relations of the armed forces is a two-way activity. It shouldmodif y its own policies and practices at the same ti me that it attemptsto shape public attitudes.

Other reasons why public relations does not have its proper values:American military men traditionally have not ha d to deal with public

opinion. They have worked in a system of authority and rules. Civiliansin control in the Defense and other departments have often been lawyerswho were dominated by precedent. They have not been greatly concernedwith public opinion, either. Consequently, the public relations aspectof defense is usually regarded as somewhat of a nuisance, except whereit has helped present favorable news of individuals or helped to win anappropriatio n for a program.

Public relations is often discussed by men who don't know what itis. There is a feeling that it is something tri cky and it is too badt o h a v e to u s e i t .

There is another reason for the weakness of armed forces publicrelations, It is generally believed in the armed forces that an officerwho is good at one thing is good at another. A gener al who is a geniusat command must obviously excel in everything else. First-class militaryofficers have been placed in command in the field of public relationswho have had absolutely no public relations experience. This is like

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R F S T R I C T E Dp l a c i n g a p o l o p l a y e r a t t h e h e a d o f a m e d i c a l d i v i s i o n . A m a n m a y b ep l a c e d i n c o m m a n d o f a p u b l i c r e l a t i o n s b u r e a u b e c a u s e h e w a s a g o o dg e n e r a l i n th e f i el d , o r s o me t i m e s, b e c a u s e h e w a s n o t . P u b l i c r e l a t i o n sm e n i n t h e a r m e d f o r c e s w h o a r e s k i l l ed , a n d w h o s e e x p e r i e n c e c o v e r s al o n g p e r i o d o f tr a i n i n g, a r e o f t e n n o t a d v a n c e d t o p o s i t i o n s o f a u t h o r i t yi n t h a t f i e l d b e c a u s e a d v a n c e m e n t i s n o t b a s e d o n p u b l i c r e l a t i o n sc r i t e r i a, b u t o n s t a n d a r d s o f c o m m a n d o r l o n g e v i t y o f s e r v i c e . P u b l i cr e l a t i o n s i s n o t t r e a t e d i n t e r m s o f i t s p o w e r t o b u i l d m o r a l e o r h e l pw i n a w a r . I t i s t r e a t e d a s a s e m i n e c e s s a r y n u i s a n c e .

T h e o v e r - a l l p u b l i c r e l a t i o n s o f t h e a r m e d f o r c e s i s s e r i o u s l yl i m i t e d a n d h a n d i c a p p e d b y l a c k o f a b a s i c l o n g - t i m e p o l i c y . T h i sf u n d a m e n t a l l o n g - t i m e p u b l i c r e l a t i o n s p o l i c y o f t h e D e p a r t m e n t o fD e f e n s e s h o u l d b e l a i d d o w n a f t e r c o n c l u s i v e d e l i b e r a t i o n s b y a p l a n n i n gb o d y . T o d a y , r e g r e t t a b l y, t h e r e i s n o s u c h l o n g - t e r m p u b l i c r e l a t i o n sp o l i c y t o g ui d e p u b l i c r e l a t i o n s a c t i v i t i e s . T h e p o l i c y o f t h e D e f e n s eD e p a r t m e n t , r a t h e r, r e f l e c t s t h e i d e a s o f t h e t h e n c u r r e n t S e c r e t a r y o fD e f e n s e r a t h e r t h a n a b a s i c p o l i c y . O n e S e c r e t a r y o f D e f e n s e i s s u r et h e D e p a r t me n t ' s p u b l i c r e l a t i o n s s h o u l d r e v o l v e a r o u n d u n i f i c a t i o n .A n o t h e r m a y s t r e ss t w o or t h r e e i d ea s , s u c h a s u n i v e r s a l m i l i t a r y t r a i n i n ga n d a r e s e r v e p r o g r a m f o r m u n i t i o n s a n d m a n p o w e r ; h e m a y e x c l u d e a l lo t h e r c o n s i d e r a t i o n s . A n o t h e r e m p h a s i z e s p r o d u c t i o n . E a c h e m p h a s i z e sw h a t he b e l i e v e s i s u n i q u e l y i m p o r t a n t . T h e r e i s n o b r o a d o v e r - a l l p u b l i cr e l a t i o n s c o n c e p t i n t o w h i c h s p e c i a l n e e d s c a n f i t .

A n o t h e r r e a s o n f o r t h e n e g l e c t o f s o u n d p u b l i c r e l a t i o n s i n m i l i -t a r y m a t t e r s i s t h a t t o o o f t e n p u b l i c r e l a t i o n s i s m e a s u r e d q u a n t i t a t i v e l y ,t h a t i s, i n t e r m s o f p u b l i c i t y , i n t e r m s o f n u m b e r s o f l i n e s o f s p a c e .T h e r e i s a c e r t a i n a n t i - i n t e l l e c t u a l i s m i n t h e r e f u s a l t o r e c o g n i z e t h a tm o d e r n s o c i e t y h a s b e c o m e a m o s t c o m p l e x s t r u c t ur e , t h a t b e h a v i o r p a t t e r n so f t h e p u b l i c a r e t h e r e s u l t o f g r o u p a n d i n d i v i d u a l ~ c a u s e s , t h a t t h es o c i a l s c i en c e s , p s y c h o l o g y , s o c i o lo g y , a n d a n t h r o p o lo g y , a r e i m p o r t a n ti n d e v e l o p i n g u n d e r s t a n d i n g i n o u r p r e s e n t - d a y s o c i e t y . T h e r e i s r e l u c -t a n c e t o w o r k w i t h p u b l i c o p i n i o n a s s e r i o u s l y a s w e w o r k o n t a n g i b l ee l e m e n t s .

A n o t h e r d i f f i c u l t y i s t h i s . T h e p u b l i c r e l a t i o n s m e n i n th eD e p a r t m e n t o f D e f e n s e a r e o f t e n f r u s t r a t e d b e c a u s e t h e y h a v e t o c h a n g et h e a t t i t u d e s t h e y h a d i n p r i v a t e l i f e . I n p r i v a t e i n d u s t r y t h e y g e a r e dp u b l i c r e l a t i o n s a n d p u b l i c i t y t o m a k i n g m o r e m o n e y . I n t h e D e f e n s eD e p a r t m e n t , t h e y h a v e d i f f i c u l t y i n a d j u s t i n g t h e i r p o i n t o f v i e w t or e a l i z e t h a t s u c c e s s b y t h e s a m e s t a n d a r d s m i g h t m e a n f a i l u r e , b e c a u s ei t w o u l d i n c r e a s e t a x e s a n d a r o u s e c r i t i c i s m .

A b o v e a l l, t h e r e i s t h e g e n e r a l f e a r b y t h e p u b l i c t h a t p u b l i cr e l a t i o n s i s s y n o n y m o u s w i t h a t t e m p t s a t t h o u g h t c o n t r o l .

P o s s i b l y I c a n m a k e m y p o i n t b y s k e t c h i n g t h e p r e s e n t r e l a t i o n s hi pb e t w e e n t h e m i l i t a r y a n d p u b l i c o p i n i o n .

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llS8 R E S T R I C T E DThe public at large thinks the war effort is centered in the

Defense Department and looks to this Department for reassurance andsecurity. Yet, the Defense Department has no clear-cut definition ofits public relations responsibilities nor of the activities necessaryto carry out its public relations functions. For example, does theDepartment believe that public relations activity is a function of ad-justment with the public? Or that it is persuasion aimed at winningover public opinion? Or that it should merely disseminate news andinformation? Because it is illegal for the Department to attempt topersuade the public--there is a la w against propagandizing--the Depart-ment plays safe by issuing wha t it calls news.

This whole problem of deciding what is information and what is ,news is not easy to solve. It is undoubtedly true that information isissued today because of its persuasive powers rather than by any othercriterion. Those in a position to know state there would be littleincentive for serious public relations effort unless persuas ion were thereal goal.

The public relations activities of the three services functionalmost enti rely independent ly of one another, with the Joint Chiefs ofStaff maintaining a loose direction over them. As with the DefenseDepartment, so, too, the individu al service have no frank, clear-cutdefinition of their public relations objectives. Each service approachesits problems of public opinion individually and tries to build up asmuch public good will as possible mainly to improve the morale of itsown department, and to meet its own obj ectives in relation to the publicand Congress. Army, Navy, Air Force--eac h one acts public relations-wi sealmost as if it were a self -contained entity.

But for fear of possible accusation by Congress or by the publicof trying to propagandize, or to sell their program to the ~eople, eachdepartment masks its propaganda by calling it news and information. Yetdespite the label, the y conti nua lly try to persuade the public. As,for instance, when they ask the public to back them on appropriations.

The rivalry of the services for public good will sets up competitionand building up one service with the public and Congress at the expenseof another. Ne w weapons are touted, accompl ishments exaggerated, in thestrategy of rivalry. Abuses by one service lead to abuses by another.

Without clear-cut definition of public relations policy, the DefenseDepartment and the services are greatly handicapped. The public andCongress alike are wary of special pleading under the guise of news. Thepublic may suffer, too, for Congress mig ht withhol d nece ssar y support.The service which does a good selling job of propaga nda camouf laged asnews, to the public and to Congress, is likely to get what it wants. Asa result, the Nation may get lopsided military defenses instead of abalanc ed defense that is best for the country as a whole.

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R E S T R I C T E D k

W e a re , o f c o u r s e, t h o r o u g h l y a f r a i d o f g o v e r n m e n t t h o u g h t c o n t r o las prac tice d by Co~tmunists, Fascists, and Nazis . Consequ ently, weh a v e w i s e l y e r e c t e d b a r r i e r s a g a i n s t t h o u g h t c o n t r o l . T h i s m e s h e s i nw i t h o u r t r a d i t i o n a l f e a r o f b i g g o v e r nm e n t , b i g b u s i n e s s , b i g l a b o r .W e l i k e o u r s y s t e m o f c h e c k s a n d b a l a n c e s , o f m u l t i p l e c o n t r o l i nm o s ~ g o v e r n m e n t a l a c t i v i t i e s . T h i s i s t o p r e v e n t a b u s e b y c e n t r a l i z e dp ower.

B u t i n o u r c r i s i s s i t u a t i o n w e m u s t f a c e t h e s i t u a t i o n c l e a r l y .W e n e e d t o r e d e f i n e t h e p u b l i c r e l a t i o n s a s p e c t s o f m o b i l i z a t i o n b o l d l y ,a s w e h a v e r e d e f i n e d c i v i l l i b e r t i e s . I n c i v i l li b e r t ie s , y o u m a y r e c a l l ,w e h a v e r e a c h e d t h e c o n c l u s i o n t h a t l i c e n s e s h o u l d n o t b e g i v e n t o t h o s ew h o a i m t o d e s t r o y l i b e r t y . I t t o o k a l o n g t i m e t o m a k e t h i s d e c i s i o n .W e h a v e l i t t l e t i m e t o d e c i d e h o w t o m o b i l i z e p u b l i c o p i n i o n o n b e h a l fo f n a t i o n a l s e c u r i t y w h i l e r e m a i n i n g w i t h i n t h e s a f e g u a r d s o f o u r d e m o -cratic system.

W e m u s t f i n d a w a y s i m u l t a n e o u s l y t o g a i n p u b l i c s u p p o r t f o r o u rd i p l o m at i c , m i l i t a ry , e c o n o m i c , a n d p s y c h o l o g i c a l f o r c e s . I n m o b i l i z a t i o nwe can not t reat any iz~dividual fact or by itself.

N o s i n g l e d e p a r t m e n t c a n h a n d l e t h e p r o b l e m o f g a i n i n g p u b l i c s u p p o r tf o r d e f e n s e m o b i l i z a t i o n . A l l t h e d e p a r t m e n t s a n d s e r v i c e s m u s t c o o p e r a t e .

A s a l a y m a n I a m o b v i o u s l y n o t g o i n g t o t r y t o g i v e y o u a p a t s o l u t i o n .T o g i v e y o u a s p e ci f i c c o n s t r u c t i v e p r o g r a m , I w o u l d h a v e t o m a k e a ne x t e n d e d s t u d y t h a t w o u l d i n v o l v e r e s e a r c h o f y ou r i n t e r n a l s e t up a n d p r o -c e d u r e s . B ut , t h e r e i s e n o u g h a v a i l a b l e d a t a f o r m e t o s u g g e s t s o m e n e wa p p r o a c h e s t o a n e f f e c t i v e h a n d l i n g o f y o u r p r o b l e m .

P o s s i b l y s o m e o f t he m m a y b e s u g g e s t i v e t o y o u a s p o l i c y m a k e r s a n dm a y l e a d t o a r e - e x a m i n a t i o n o f t he e n t i r e o r g a n i z a t i o n o f y o u r p u b l i cr e l a t i on s , i t s p o l i c y , s t r a t e g y , a n d t a ct i c s . T h i s e x a m i n a t i o n I f e e lc o n v i n c e d w o u l d r e s u l t i n r e s h u f f 1 ~ n g t h e a l l o c a t i o n o f r e s p o n s i b i l i t i e sa n d f u n c t i o n s .

T h e p r o b l e m o f a p o s s i b l e r e o r i e n t a t i o n o f c e r t a i n a s p e c t s o f t h es y s t em a l o n g n e w l i n e s h a s a l r e a d y b e e n m u c h d i s c u s s ed a n d h a s r e c e i v e dw i d e s p r e a d p u b l i c i t y . G e n e r a l E i s e n h o w e r ' s s p e e c h i n B a l t i m o r e inS e p t e m b e r p r o m i s e d a t o p c iv i l i a n c o m m i s s i o n t o s t u d y t h e o p e r a t i o n o ft h e d e p a r t m e n t . D r . V a n n e v a r B u s h, i n " C o l l i e r ' s , " r e c e n t l y d i s c u s s e dt h e m i l i t a r y p l a n n i n g s t r u c t u r e a n d t h e f u n c t i o n s o f t h e J o i n t C h i e f s o fS t a f f .

M y r e c o m m e n d a t i o n s d o n o t d e a l w i t h t h e s e m a t t e r s ~ b u t r a t h e r w i t ht h e r e l a t i o n s h i p s o f p u b l i c o p i n i o n t o m o b i l i z a t i o n .

I t m i g h t b e a d v i s a b l e t o p l a c e d i r e c t i o n o f t h e e f f o r t s t o g e t p u b l i cs u p p o r t f o r a l l m o b i l i z a t i o n i n t h e o f f i c e o f t h e P r e s i d e n t a n d h i s s t a f f .

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R E S T R I C T E DT h i s w o u l d b e a l o g i c a l e x t e n s i o n o f h i s o b l i g a t i o n t o l e a d t h e c o u n t r y .T h e p u b li c e x p e c t s a c t i v i t i e s o f l e a d e r s h i p f r o m h i m . H e c a n p r e s e n tt o t h e p u b l i c f a c t u a l e v i d e n c e t h a t w i l l b e a c c e p t e d a s t r u t h f u l o n t h ebasis of his authority. He can reason with the public. He can tr y topersuad e the public to a course of action. As President he speaks fort h e e n t i r e c o un tr y , n o t o n l y f o r o n e p a r t y o r o n e d e p a r t m e n t o r o n eservice. The Preside nt symbolizes national unity. All communication sfacilities are available ~o him for the important job of education andpersuasion. In a mino r way, he is alread y doing these things. I proposet h a t h i s p e r s u a s i o n a c t i v i t y b e s t r e n g t h e n ed a n d e n l a r g ed .

U n d e r t h i s s e t u p t h e D e f e n s e D e p a r t m e n t a n d t h e t h r e e s e r v i c e s w o u l dl i m i t t h e i r p u b l i c r e l a t i on s a c t i v i t i e s t o i s s u i n g n e w s a n d i n f o r m a t i o n ~to the public. There is still some misunde rstand ing of the impact ofn e w s a n d i n f o r m at i o n o n t h e p u b l i c . N e w s a n d i n f o r m a t i o n h a s l i t t l e p e r -s u a s i ve p o w e r . N e w s i s i m p o r t a n t in k e e p i n g i n t e r e s t e d p ub l i c s i n f o r m ed .Straight new s i s an obligation of the Department and sea'vices to thep u b l i c . S u c h i n f o r m a t i o n s h o u l d b e c l e a r l y o b j e c t i v e a n d s t r a i g h tf o r w a r d.T h e r e w o u l d b e n o n e e d u n d e r t h i s p r o p o s e d p l a n t o di s g u i s e p e r s u a s i o n a snews. However, the Defense Department, in anothe r function of its pub licrelations program, should continue to carry forward its joint orientationconferences.. These are important. The y give facts and point of vie w too p i n i o n m o l d e r s a n d n a t i o n a l l e ad er s , a n d b r i n g t h e m u p t o d a t e r e g a r d i n gprojects and progrs~ns of the De fense Department.

I n t h e s e p r e c a r i o u s t i m e s i t i s u n w i s e t o c a m o u f l a g e h i g h l y i m p o r t a n tpersuasion, to preten d that it is news or factual information. Bothp e r s u a s i v e a n d i n f or m a t i v e e f f o r t s ar e n e c e s s a r y . B o t h m u s t b e h o n e s t l ylabeled.

E f f e c t i n g a c e n t r a l i z e d c o n t r o l u n d e r t h e O f f i c e o f t h e P r e s i d e n tw i l l n o t b e a n e a s y m a t te r , b e c a u s e v e r y o f t e n o u t s i d e c i v i l i a n b o d i e st a l k f o r t h e i n d i v i d u a l s e r v i c e s -- t h e N a v y L e a gu e, t h e A i r F o r c e A s s o c i a -tion, and the like. But eliminat ing the special plead ing of the servicesw i l l b e s a l u t a r y i n g a i n i n g a h i g h l e v e l o f c o o p e r a t i o n o f a l l e l e m e n t si n D e f e n s e a n d S e cu r i t y . B u t e f f e ct i v e c o n t r o l c a n b e l i m i t e d t h r o u g ht h e b u d g e t a r y c o n t r o l o f e ~ o e n d it u r e s i n t h e h a n d s o f t h e P r e s i d e n t a n dt h e C o n gr e s s.

T h e N a t i o n a l S e c u r i t y C o u n c il ( N S C ) w h i c h f u n c t i o ns u n d e r t h eP r e s i d e n t o f t h e U n i t e d S t a t e s c a n a s s i s t h i m i n t h e p o l i c y p l a n n i n g o ft h e s e a c t i v i t i e s - - a n o v e r - a l l p r o g r a m t o g e t p u b l i c s u p p o r t f o r o u rdiplomatic, military, and economic mobiliz ation prog rams treat ed as aunit. The NSC should, I suggest, b e strengthene d to fulfill its duties,which are descri bed offici ally as follows: "to assess an d appraise theobjectives, commitments, a nd risks of the Uni ted States in relation too u r a c t u a l a n d p o t e n t i a l m i l i t a r y p ow e r, i n t h e i n t e r e s t o f n a t i o n a lsecurity, for the purpos e of maki ng recommendat ions to the President; and

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R E S T R I C T E Dt o c o n s i d e r p o l i c i e s o n m a t t e r s o f c o m m o n i n t e r e s t t o t h e d e p a r t m e n t sa n d a g e n c i e s o f t h e G o v e r n m e n t c o n c e r n e d w i t h t h e n a t i o n a l s e c u r i ty , a n dt o m a k e r e c o m m e n d a t i o n s t o t h e P r e s i d e n t . " ( F r o m U . S o G o v e r n m e n t O r g a n i -zation Manual, 1952-1953, p. 64.)

T h e N S C h a s a l r e a d y b e e n o r g a n i z e d f o r s t r a t e g i c p l a n n i n g i n m a t t e r so f n a t i o n a l d e f e n s e . W e p r o p o s e t h a t t h e s e a c t i v i t i e s b e e x p a n d e d .A t p r e s e n t , t h e N S C i s m a d e u p o f t he P r e s i d e n t, t h e V i c e - P r e s i d e n t ,

t h e S e c r e t a r i e s o f S t a t e a n d D e f en s e , a n d t h e C h a i r m a n o f t h e N a t i o n a lS e c u r i t y R e s o u r c e s B o a r d. I n a d d i t i o n t o t hi s, t h e f o l l o w i n g a r e a u t h o r -i z e d t o a t t e n d m e e t i n g s : t h e S e c r e t a r y o f t h e T r e a s u r y , t h e D i r e c t o ro f D e f e n s e M o b i l i z a t i o n , t h e C h a i r m a n o f t h e J o i n t C h i e f s o f S t a f f , t h eD i r e c t o r o f C e n t r a l I n t e l l i g e n c e , t h e S p e c i a l A s s i s t a n t t o t h e P r e si d e n t ,a n d t h e S p e c i a l C o n s u l t a n t t o th e P r e s i d e n t . B u t r e g r et t a b l y , t h e s em e n a r e e n g a g e d i n o p e r a t i o n a l a c t i v i t i e s t h a t d e m a n d a m a j o r p a r t o ft h e i r t i m e . T h e N S C s h o u l d h a v e a f u l l - t i m e s t a f f o f m e n w h o h a v e r e q u i -s i t e k n o w l e d g e a n d e x p e r i e n c e .

I a m c o n v i n c e d t h a t t h e N S C , u n d e r t h e P r es i d e n t , s h o u l d b e e m p o w e r e dt o f o r m u l a t e o v e r - a l l p l a n s t o m a i n t a i n p u b l i c s u p p o r t f o r m o b i l i z a t i o n - -e c o n o m i c , m i l i t a r y , p s y c h o l o g i c a l , a n d d i p l o m a t i c - - a n d t h e o f f i c e o f t h eP r e s i d e n t s h o u l d a s s u m e t h e t a s k o f c a r r y i n g o u t t h e s e p la n s , t h a t i s,p e r s u a d i n g t h e p u b l i c t o s u p p o rt m o b i l i z a t i o n i n a l l i ts a s p e c t s . A n dt h a t t h e D e f e n s e D e p a r t m e n t a n d t h e s e r v i c e s r e s t r i c t t h e i r e f f o r t s t on e w s a n d i n f o r m a t i o n .

Q U E S T I O N : Y o u r e c o m m e n d e d t h a t t h e P r e s i d e n t e x e r c i s e t h e p e r s u a s i v ep o w e r a n d t h a t th e s e rv i c e s b e o b j e ct i v e . D o y o u t h i n k t h a t i s p r a c t i -c a b l e ? W i l l i t b e p o s s i b l e t o g et th e s e r v i c e s o u t o f t h e p e r s u a s i o nb u s i n e s s w h e n t h e i r o w n p e r s o n a l i n t e r e s t s a r e s o c l o s e l y a l l i e d t o t h ep e o p l e a n d p a r t i c u l a r l y t h e C o n gr e s s ?

M R . B E R N A Y S : T h e q u e s t i o n y o u r a i s e i s o n e I t h o u g h t a l o t a b o u tb e f o r e I m a d e t h e r e c o m m e n d a t i o n . I d i s c u s s e d t h e q u e s t i o n w i t h a n u m b e ro f k n o w l e d g e a b l e m e n i n t h e s e r v i c e s a n d o ut . A s c h o o l o f t h o u g h t h e a d e db y H e n r y L u c e m a i n t a i n s t h a t t h e r e c a n b e w h a t i s c a l l e d o b j e c t i v e j o u r -n a l i s m ; t h a t is , i t i s p o s s i b l e t o t a ke n e w s a s d e f i n e d b y W a l t e r L i p m a n n - -" A n y o v e r t a c t t h a t j u t s o u t o f r o u t i n e c i r c u m s t a n : e " - - a n d p r o j e c t t h a tn e w s o n an o b j e c t i v e b a s i s .

I r e c o g n i z e t h a t i t i s n o t p o s s i b l e t o f o l l o w s u c h t y p e o f c r i t e r i o nc o m p l e t e l y b e c a u s e b y t h e v e r y p r o c e ss o f s e l e c t i v i t y i t g o v e r n s w h a ty o u p u t o u t a n d w h a t y o u d o n ' t p u t o u t, y o u a r e u s i n g a c e r t a i n a m o u n to f p e r s u a s i o n . Y o u a r e u s i n g w h a t s o m e b o d y o n c e c a l l e d " s e l e c t i v e t r u t h. "S e l e c t i v e t r u t h m a y w e l l b e n o t o n l y p r o p a g a n d a b u t d i s t o r t i o n . H o w e v e r ,Y t h i n k t h a t i f t h i s t y p e o f p l a n i s c a r r i e d o u t p r a c t i c a l l y , a n y p e r s o nw h o h a s w h a t I c a l l sk i l l, e ~ p e r i e nc e , a n d a p t i t u d e w o u l d r e c o g n i z e i na v e r y s h o r t t i m e b y t h e d e f i n i t i o n s w e h a v e s e t u p w h e t h e r a s p e c i f i cd e p a r t m e n t i s c a r r y i n g o u t p e r s u a s i o n o r w h a t I c a l l s t r a i g h t o b j e c t i v en e w s .

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R E S T R I C T E Dii4

We have found, fo r instance, that in the courts, which are animpor tant aspect of our society, the se criteria do govern the situation.S t r a i g h t n e w s i s n o t c o n s i d e r e d c o n t e m p t o f co u r t . N e w s t h a t i s s l a n t e dto affec t the court, the jurors, or the climate of opinion is regard eda s c o n t e m p t o f c o u r t .

I f t h i s w e r e s e t u p a s a b a s i c p o l i c y a n d t h e r e w e r e s o m e l i t t l eb o a r d o f d i s i n t e r e s t e d i n d i v i d u a l s w h o w e r e a l s o e x p e r t , o n e c o u l d v e r yd e f i n i t e l y m a i n t a i n b r o a d c r i t e r i a o f n e w s v a l u e a s o p p o s e d t o p r o p a g a n d ao r p e r s u a s i v e v al u e s . I f t h e p e o p l e w h o a r e i n t h e p o s i t i o n o f j u d g i n gk n o w t h e d i f f e r e n c e a n d - - I w o u l d s a y t h e r e a r e a n y n u m b e r w h o d o; C o l o n e lD a v i d P a g e h e r e k n o w s t h e d i f f er e n c e ; G e n e r a l G i s b u r g h k n o w s - - i f t h e r eis sufficien t cont rol at the top, there will not be the division.

Y o u k n o w w h a t o c c u r s i n w a r t i m e . I n w a r t i m e i t is p o s s i b l e b yv o l u n t a r y c o o p e r a t i o n t o b r i n g a b o u t c e n s o r s hi p i n a w a y . I t i s c a l l e dv o l u n t a r y c e n s o r sh i p . W e l l, h e r e y o u ha v e n ' t g o t v o l u n t a r y c o o p e r a t i o n ;h e r e y o u h a v e a l i n e o f c o m m a n d a n d i ns t r u c t io n , a n d i t w o u l d b e v e r ye a s y t o m a i n t a i n t h e c o u r s e t h a t o n e s e t s a t t h e b e g i n n i n g a s t o t h ed i f f e r e n c e s b e t w e e n n e w s a n d p r o p a g a n d a .

QUESTION: Let us go back to this same question of cooperat ion ofp u b l i c r e l a t i o n s p e o p l e a t t he W h i t e H o u s e l e ve l . D o n ' t y o u t h i n k t h a tsince people are human beings, a fter a certain lengt h of time at thatl e v e l t h e r e w o u l d b e a t e r r i f i c a m o u n t o f p r o p a g a n d a g o i n g o u t t e ] l ~ n gt h e g o o d o l d A m e r i c a n p u b l i c a l l a b o u t t h e P r e s i d e n t o f t h e U n i t e dS t a t e s ? Y o u w i l l r e c a l l a f e w y e a r s a g o S e c r e t a r y J o h n s o n h a d q u i t e ap u b l i c r e l a t i o n s s t a f f.

MR. BERNAYS: L e t m e s t a r t i n w i t h c e r t a i n F r e m i s e s . P r e m i s e n u m b e ro n e i s t h a t I h a v e l o n g s i n c e g i v e n u p t h e h o p e f o r t h e p e r f e c t w o r l dbecause I don't th ink there is any; second, in any situatio n of thi~ kind,i t w o u l d s e e m t o m e t h a t y o u h a v e t o c h o o s e w h i c h i s t h e b e t t e r o f t w osituations an d you choose the one which, as s omebod y once said about thestock market, being on balance is going to give you the better result.

No w it seems to me that if you treat the situat ion of balance,w h a t d o y o u h a v e ? Y o u h a v e a s i t u a t i o n i n w h i c h t h e r e a r e t h r ee s e r v i c e sa n d a d e p a r t m e n t . Y o u h a v e t h e m w o r k i n g a t a v e r y h i g h l e v e l o f i n ge n u i t y,s k i ll , a p t i tu d e , a n d e x p e r i e n c e t o f o c u s p u b l i c i n t e r e s t a n d p u b l i c a t t e n -tion, first on buil ding morale within their departm ent and, second, gettingw h a t t h e y w a n t .

N o w i t s e e m s t o m e t h a t y o u h a v e t o d e a l w i t h t h a t s i t u at i o n . Y o ua r e d e a l i n g w i t h a p u b l i c t h a t i s n o t i n f o r m e d . Y o u a r e d e a l i n g w i t h apublic which has 8.8 years of schooling. You are dealing with a public,5 8 p e r c e n t o f w h o m h a v e a n i n t e l l i g e n c e q u o t i e n t b e t w e e n 9 5 a n d 1 0 5.A n d y o u a r e a l s o d e a l i n g w i t h a s i t u a t i o n i n w h i c h t h e c o m p e t i t i v e a d v a n -t a g e o f a n y o n e s e r v i c e i n w h a t w e m i g h t c a l l " m a n i p u l a t i n g s y m b o l s " c a nv e r y d e f i n i t e l y b r i n g a b o u t a d v e r s e e f f e c t s i n t e r m s o f n a t i o n a l i n t e r e s t .

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R E S T R I C T E DW e l e a r n e d l o n g a g o t h a t i n d e a l i n g w i t h a n y p r o b l e m i n p u b l i c

r e l a t i o n s y o u h a v e t o t r e a t i t i n t e r m s o f o b j e c t i v e s a n d i n t e r m s o ft o t a l i t y o f t h e p r o b l e m . I f t h e o b j e c t i v e o f a n y p u b l i c r e l a t i o n sa c t i v i t y w e r e t o b u i l d u p o n e s e r v i c e o v e r a n d a b o v e a n o t h e r , I m i g h tl e a n t o w a r d a d i f f e r e n t s o l u t i o n . H o w e v e r , i f t h e o b j e c t i v e i s t h en a t i o n a l i n t e r e s t, t h e n, i t s e e m s t o m e , w e h a v e t o a r g u e a n d r e a s o na n d d e d u c e w i t h t h a t a s t h e p r i m a r y f a c t o r i n t h e d e t e r m i n a t i o n o f ap u b l i c r e l a t i o n s p o l i c y .

N o w l e t u s g e t t o t h e n a t i o n a l i n t e r e st . I f th e n a t i o n a l i n t e r e s ti s a s t r o n g A m e r i c a , a n d i f th e n a t i o n a l i n t e r e s t r e q u i r e s p o w e r f u ls u p p o r t o f A m e r i c a n s f o r b u i l d i n g o u r m i l i t a r y , e c o n o m i c, d i p l o m a t ic ,a n d p s y c h o l o g i c a l s t r e ng t h , t h e n i t s e e m s t o m e t h a t a l o g i c a l c o n c l u s i on ,e v e n t h o u g h i t m a y n o t b e t h e p e r f e c t s o l u t io n , i s t o t r e a t t h e p r o b l e mo f p u b l i c s u p p o r t o n a b a s i s o f t h e b r o a d, i n t e g r a t e d n e e d r a t h e r t h a no n t h e b a s i s o f a n y s e g m e n t a r y a p p r o a c h t o i t .

L e t m e g i v e y o u a n e x a m p l e f r o m a c o r p o r a t i o n w e w o r k w i t h , G e n e r a lM o t o r s . I n t h i n k i n g o f p u b l i c s u p p o r t f o r G e n e r a l M o t or s , y o u c a n ' tp o s s i b l y t h i n k o f p u b l i c s u p p o r t o n l y i n t e r m s o f p u b l i c s u p p o r t t oi n s u r e t h a t t h e f l o w o f s t e e l g e t s to n h e G e n e r a l M o t o r s p l a n t . Y o uc a n ' t t h i n k o f p u b l i c s u p p o r t o n l y i n t e r m s o f b u i l d i n g u p g o o d w i l la m o n g t h e s t o c k h o l d e r s t o s u p p o r t t h e c o m p a n y b y p u r c h a s e o f G e n e r a lM o t o r s c a r s . Y o u c a n ' t p o s s i b l y t h i n k o f p u b l i c s u p p o r t o n l y i n t e r m so f o b t a i n i n g t h e g o o d w i l l o f 5 0 0 ~ 0 0 0 o r 6 0 0 , 0 0 0 w o r k e r s t o w a r d G e n e r a lM o t o r s . Y o u h a v e t o t h i n k o f t h e p r o b l e m a s a t o t a l p r o b l e m .

N o w b y t h e s a m e t o k e n, i t s e e m s t o m e , i n t r e a t i n g t h e p r o g r a m o fn a t i o n a l s e c u ri t y , w e h a v e t o s t a r t w i t h t h e t o t a l r a t h e r t h a n s t a r t i n gw i t h t h e s e g m e n t . I f w e s t a r t w i t h t h e ~ o t a l , i t ~ e e m s t o m e t h a t t h eo n l y g o d h e a d s y m b o l i n t h e c o u n t r y, t o b o r r o w a p h r a s e f r o m t h e U n i v e r -s i t y o f C h i c a g o , i s t h e P r e s i d e n t o f t h e U n i t e d S t a t e s . M y p e r s o n a lf e e l i n g i s t h a t t h e c h e c k s a n d b a l a n c e s t h a t a r e i n h e r e n t i n t h e U n i t e dS t a t e s G o v e r n m e n t c a n d e f l a t e a P r e s i d e n t, a s w e h a v e l e a r n e d , J u s t a st h e y c a n d e f l a t e o r i n f l a t e a n i n d i v i d u a l s e r v i c e .

QUESTION: H o w d o y o u p r o p o s e t o k e e p t h o s e g e n t l e m e n k n o w l e d g e a b l ei f t h e y a r e d i v o r c e d f r o m a l l o p e r a t i o n a n d s e p a r a t e d f r o m t h e s e ~ v l c e su n l e s s y o u c r e a t e a n e w s t r a t u m i n a n a l r e a d y o v e r s t r a t i f i e d g o v e r n m e n t .

MR. BERNAYS: L e t m e g i v e y o u tw o a n s w e r s t o y o u r q u e s t i o n . T h ef i r s t a n s w e r i s t h a t i f w e s t a r t w i t h t h e a s s u m p t i o n , w h i c h I t h i n k i sp r e t t y w e l l a c c e p t e d , t h a t i n a c r i s i s s i t u a t i o n w e n e e d n a t i o n a l p l a n n i n ga t t h e t op , t he n, w e m u s t l o g i c a l l y c o n c l u d e t h a t t h e r e h a s t o b e s o m en a t i o n a l p l a n n i n g g r o u p t h a t i n t e g r a t e s t h e v a r i o u s a s p e c t s o f p u b l i co p i n i o n w i t h d e f e n s e o r s e c u r i t y i n t h e s a m e w a y t h a t t h e J o i n t C h i e f so f S t a f f p r e s u m a b l y i n t e g r a t e t h e m i l i t a r y a s p e c ts i n t o a c o o r d i n a t e dw h o l e . T h a t i s t h e f i r s t a n s w e r t o t h e q u e s t i o n y o u r a i s e d . N o w l e t m eg i v e y o u t h e s e c o n d o n e .

:EL

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R E S T R I C T E DOver the last 50 years there has been a tremendous advanc e in the

study of behavior, motivation, attitude, indiv idual psychology, an dw h a t i s c a l l e d s o c i a l p s y c h o l o g y o r g r o up p sy c h o l o g y . T h e r e a r e t e c h -niques available by which an y outside group, let alone the NSC, canevaluate the hopes, the aspirations, the desires, the behavi or patterns,t h e m o t i v a ti o n s , a n d t h e v a l i d a n d i n v a l i d v a l u e s o f t h e A m e r i c a n p e o p l e ,Those t echniques are availa ble to any group.

L e t m e g i v e y ou a n e xa m p l e. I w a s t a l k i n g t o s o m e b o d y i n t h eT r e a s u r y a f e w w e e k s a g o . T h e T r e a s u r y r e t a i n e d t h e G r ou p s D y n a m i csm a c h i n e r y o f t h e U n i v e r s i t y o f M i c h i g a n t o m a k e a s t u d y f o r t h e m o nw h a t t h e p u b l i c m i g h t b e e x p e c t e d t o b u y o v e r t h e n e x t t w o - y e a r p e r i o di n t e r m s o f s u c h t h i n g s a s v a c u u m c l e a n e r s o r r e f r i g e r a t o r s o r U n i t e dStates Savings Bonds.

T h o s e s t u d ie s a r e n o t s i m p l y a t t i t u d e p o l l s s u c h a s G e o r g e G a l l u po r R o p e r d e v e l o p e d . T h o s e s t u d i e s a r e b a s e d o n w h a t i s c a l l e d d e pt ha n a l y s i s t h a t t r i e s t o g e t t o t h e v e r y s u b c o n s c i o u s n e s s o f i n d i v i d u a l s .T h e r e a r e t e c h n iq u e s a v a i l a b l e t o d a y t h a t e n a b l e t h e s o c i a l p s y c h o l o g i s t sw h o c a ~ t h e m o u t t o e v a l u at e w h a t t h e c o ns i d e r a t i o n s a r e i n a h o u s e -wife' s mind, such a s status values and so on, that make h er bu y a vacuumcleaner rath er than a refrigerator.

N o w N S C , w i t h t h e f a c i l it i e s a v a i l a b l e i n m e a s u r i n g t h e ar e a s o fapathy, of ignoran ce, of frustration, of aggress ion, of hope, of desireb y s u c h t e c h ni q u e s a s I h a v e p o i n t e d o u t , w o u l d b e i n a p o s i ti o n , a s s u m i n gt h a t t h e r e i s a n o v e r - a l l s e c u r i t y p l a n f o r t h i s c o u n t r y t h a t h a s b e e ncaref ully worked o ut by the Security Council, to give each one of thefunctions its prop er place in our un.ited front. Such a bod y could alsos t u d y t h e p a r t i c u l a r m i l i t a r y d i s t or t i o ns , a p a t h ie s , o r i g n o r a n c e s t h a tt o d a y e x i s t r e l a t i ve t o t h e s e d i f f e r e n t v a l u e s a n d w h i c h r e q u i r e a d j u s t -m e n t .

L e t m e g i v e y o u a c o u p l e o f s p e c i f i c c a s e s t h a t m a y i l l u s t r a t e w h a tI me a n . I r e m e m b e r t h a t i n W o r l d W a r I I o n e o f m y f r i e n d s h a p p e n e d t of e e l t h a t S e v e r s k y w a s q u i t e a g u y a n d t h a t w e d i d u ' t p l a c e e n o u g h e m p h a si sa s a p e o p l e o n a i r p o w e r . A s a r e s u l t o f t h a t , t h i s y o u n g m a n t o o kS e v e r s k y a n d g a v e th e p u b l i c w h a t I c a l l a n o r a l a n d w r i t t e n m a s s a g e a b o u tS e v e r s k y a n d a i r p o w e r .

I think in retrospect, as we look at the situation now, air powerreceived a visibility, m uch brighte r than perhaps desirable relative t ot h e b r o a d p at t e r n . I s a y , i n s t e a d o f l e t t i n g a b r i g h t y o u n g m a n d o t h a tw i t h A l e x a n d e r S e v e r s k y , t h e N S C , i n a t i m e o f c r i s i s , c o u l d v e r y d e f -i n i t e l y r e l a t e t h e a s p i r a t i o n s o f a i r p o w e r a d v o c a t e s t o t h e m a s t e r p l a nof our defense.

I f t h e p u b l i c f a i l s t o r e c o g n i z e t h e i m p a c t o f p s y c h o l o g i c a l w a rf ar e ,t h e n e c e s s i t y f o r p u b l i c s u p p o r t o f p s y c h o l o g i c a l w a r f a r e w o u l d b e o n e o fthe main elements to stress.

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When we deal with a client in the field of commerce or industry,w e f i r s t t r y t o f i n d o u t w h a t t h e a d j u s t m e n t o r m a l a d j u s t m e n t i s b e t w e e nh i s g o a l s a n d t h e p u b l i c u p o n w h o s e f a v o r t h e a c h i e v e m e n t o f t h o s e g o a l si s d ep e n d e n t . T h e n, i n w o r k i n g o u t a b r o a d p a t t e r n o f a p p r o a c h t o t h ep r o b l e m, w e a s s a y e a c h o n e o f t h o s e e l e m e n t s o f p u b l i c s u p p o r t i n o r d e rto take up the distortions, the slacks, the overe mphasi s or the und er-e m p h a s i s i n t h e p u b l i c m i n d .

I t s e e m s t o m e t h a t p l a n n i n g a n d e v a l u a t i o n o f t h a t t y pe i s o n e o ft h e o b l i g a t i o n s o f a b o d y l i k e t h e N S C . T h e s i t u a t i o n y o u h a v e t o d a y - -t h i s w a s t o l d m e b y o n e o f t h e A i r F o r c e p e o p l e - - i s t h a t i f a p a r t i c u l a rs e r v i c e h a s c o n n e c t i o n s o r c o n t a c t s w i t h p a r t i c u l a r p e o p l e i n t h e m a s sa c o m m u n i c a t i o n s m ed i a , t h e y m a y c r e a t e a t r e m e n d o u s d i s t o r t i o n a s t ot h e v a l u e o f a c e r t a i n t y p e o f p l a n e w h i c h h a s b e e n p r o d u c e d d u e t o acompeti tive situa tion as between the services.

I c a n g iv e y o u a n e x a m p le . I w a s o v e r i n P a ri s w i t h W o o d r o w W i l s o nafter World War I. Soon after the Paris Peace Conference, one of thea b l e l i e u t e n a n t s o f t h e F r e n c h A r m y w r o t e a b o o k w h i c h h e c a l l e d " P l u t a r chL i e d . " I n t h i s b o o k , h e i n d i c a t e d th a t t h e i n t e r n e c i n e w a r f a r e b e t w e e nt h e F r e n c h G e n e r al s , b e t w e e n C l e m e n c e a u a n d F o c h~ a n d o t h e r s w a s a l w a y sgreater than their unit ed front against the common enemy, the Germans.

Now as I see our pres ent situation in this country, one of the mos ti m p o r t a n t t h i n g s t o d o i s t o g e t i n t e g r a t i o n a t t he t o p . S u c h i n t e g r a t i o nw o u l d n a t u r a l l y d e p e n d a s m u c h o n g a i n i n g p u b l i c s u p p o r t a s i t w o u l d o nt h e r e l a t i v e s t r e n g t h o f t he v a r i o u s a r m e d f o r c e s i n t e r m s o f p h y s i c s a n dm e c h a n i c s o f th e s i t u a t i o n .

QUESTION. Mr. Bernays, if I unde rsto od you correctly, you statedt h a t t h e u s e o f p r o p a g a n d a a n d p e r s u a s i o n w a s n o t l e g a l . W o u l d y o ue l a b o r a t e a l i t t l e b i t o n j u s t i n w h a t w a y i t is m a d e i l l e g a l ? I s i t am a t t e r o f l aw ~

MR. BERNAYS: I don' t remem ber the exact year, but I have the yeari n m y o f f ic e , t h e C o n g r e s s p a s s e d a l a w t o t h e e f f e c t t h a t n o m o n i e sa p p r o p r i a t e d b y t h e C o n g r e s s w e r e t o b e u s e d t o f u r t h e r t h e i n t e r e s t o fa n y d e p a r tm e n t . T h a t l a w w a s p a s s e d b e c a u s e o b v i o u s l y t h e p e o p l e a n d t h eC o n g r e s s d i d n o t w a n t t o s e e t h e G o v e rn m e n t' s m o n e y s p e n t f o r g a i n i n g e n d st h r o u g h p r o p a g a n d a t h a t t h e p e o p l e t h e m s e l v e s d i d n o t e v a l u a t e o n a no b j e c t i v e b a si s . I t h i n k yo u w i l l a l s o f i n d t h a t l a w in s e v e r a l s t at e s .In other words, und er o ur soci ety or system we don' t spend our money tog e t o u r s e l v e s p r o p a g a n d i z e d .

As a matt er o f fact, that thesis or that c oncept in law has beena c c e p t e d t o s u c h a n e x t e n t t h a t t h e r e a r e a t p r e s e n t p e n d i n g b e f o r e t h eC o n g r e s s c e r t a i n l a w s t o m a k e t h e a d v e r t i s i n g a c t i v i t y o f b u s i n e s s f i r m sf o r c e r t a i n p o l i t i c a l g o a l s a n o n d e d u c t i b l e i t e m f o r i n c o m e t a x p u r p o s e s - -an example of this type of adve rtis emen t is the full-pag e lette r from the

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R E S T R I C T E Dp r e s i d e n t o f a t i re c o m p a n y t o h i s s o n a g a i n s t T r u m a n a n d i n f a v o r o fE i s e n h o w e r . A t p r e s e n t s u c h c o s t s c a n b e d e d uc t e d b e c a u se t h e l a wh a s n ' t c a u g h t u p w i t h t h e s i t u at i o n . T h o s e p a r t i c u l a r l a w s b e i n g p r o -p o s e d c a r r y f o r w a r d t h e p r i n c i p l e t h a t a d e m o c r a t i c p e o p l e d o n o t s p e n dm o n e y t o p r o p a g a n d i z e t h e m s e lv e s t o w a r d a c o u r s e o f a c t i o n t h a t m a y b ec o n t r a r y t o w h a t t h e y w a nt ,

N o w w i t h i n o u r p a t t e rn , t h e o n e m a n w h o w o u l d n o t c o m e u n d e r t h a tb an , i t s e e ms t o m e , w o u l d b e t h e P r e s i d e n t o f t h e U n i t e d S t a t e s . H ehas a manda te from the people t o advocate wha t he consider s to be in theb e s t i n t er e s t s o f t h e t o t a l c o un t r y . E v e r y b o d y r e c o g n i z e d t h e P r e s i d e n t ' sr i g h t a n d d u t y i n t h a t r e sp e c t . S o t h a t b e t w e e n p er s u a s i on , b e i n g c a r r i e do n i l l e g a l l y b y s e v e r a l d e p a r t m en t s o r b e i n g c a r r i e d o n b y t h e g o d h e a dsymbol wh o is charge d with it, in terms of precedent, law and tradition,i t s e e m s t o m e t h e r e i s n o q u e s t i o n t h a t h e s h o u l d d o i t .

QUESTION : There is one point, sir, that occurs to me in what youh a v e j u s t b e e n d i s cu s s i n g . I d on ' t t h i n k t h e r e is a n y b o d y w h o c a n s e r i -o u s l Y q u es t i o n - - s o f a r a s o v e r - a l l p o l i c i e s a n d c o m p e t i t i o n b e t w e e n t h eservices are concerne d--it has to be contr olled fr om the top; but, thisw h o l e m a t t e r o f g e t t i n g p u b l i c s u p p o r t , i s n ' t t h a t t o o b i g t o h a n d l e f r o mo n e o f f i ce ? J u s t t o t a ke y o u r G e n e r a l M o t o r s a n a l o g y ag a in , t h e f a ctt h a t t h e r e i s a G e n e r a l M o t o r s a n d t h a t t h e y e x e r c i s e s o m e c o n t r o l o v e rthe competi tive a ctivities of the differ ent co mpanies doesn' t preve ntP o n t i a c f r o m a d v e r t i s i n g a n d B u i c k f r o m a d v e rt i s i n g, b u t t h e y a r e v e r yc a r e f u l t o s e e t h a t t h e a d v e r t i s i n g d o e s n ' t c u t i n o n t h e o t h e r f e l l o w ' sterritory so to speak.

N o w t h e r e i s a v e r y b i g f i e l d o f a c t i v i t y i n p u b l i c r e l a t i o n s t h a th a s t o b e d o n e a t t h e l o c a l l e v e l i t s e e m s t o m e . I f y o u a r e a c q u i r i n gland, for example, to build a new reserva tion, somebod y has to talk tot h e l o ca l p e o p l e t h e r e a n d e ~ l a i n t h e r e a s on f o r c o n d e m n i n g t h a t l an d .The Presiden t can't handle that sort of thing. There has to be some sorto f d e c e n t r a l i z a ti o n . I w o n d e r i f y o u w o u l d c a r e t o e x p l a i n t ha t ?

MR. HERNAYS: I am glad you raise d that question. When you ared e a l i n g w i t h t h e p e o p l e o f t h e U n i t e d S t a te s, y o u a r e d e a l i n g w i t h a t r e -mendou s mass of people who vary in age, cult ural patterns, education,racia l attitudes, religious backgrounds, and so on. However, the interest ingthing is that with the commnnicatio ns systems that exist, if you launchi d e a s t h a t a r e p o t e n t i n r a l l y i n g p e o p l e t o y o u r p o i n t o f v i ew , y o u w i l lf i n d t h e c a r r y i n g p o w e r o f t h e i d e a h a s v e r y l i t t l e r e l a t i o n s h i p e i t h e r t ot h e n u m b e r o f m e n t h a t c a r r y i t f o r w a r d o r e v e n t o t h e a m o u n t o f m o n e y t h a tw a s s p e n t i n m a n p o w e r o r m e a n s t o c a r r y i t f o r w a rd .

Let me elucidate this a little bit further. In other words, i t isthe climate of opinion that is the import ant element, and that climate ofo p i n i o n h a s v e r y l i t t l e r e l a t i o n s h i p t o t h e n u m b e r o f m e n o r t h e m o n e ythat is spent on things.

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R E S T R I C T E D1147 :

I c a n g iv e y o u s o m e e x a m p l e s f r o m m y o w n e x p e r i en c e . B e f o r eW o r l d W a r I, i n 1 9 1 7 , a n u m b e r o f m e n i n N e w Y o r k w e r e t r e m e n d o u s l yc o n c e r n e d a b o u t t h e G e r m a n s m o v i n g i n t o F r a n c e a n d t h e y s t a r t e d P l a t t s -b u r g, m u c h a g a i n s t t h e w i l l o r t h e p u b l i c o p i n i o n t h a t w a s p r e v a l e n t a tt h a t t i m e . B u t o n c e s t a r t e d t h e P l a t t s b u r g i d e a , e n c o u r a g e d i n t u r n b ya f e w p r e p a r e d n e s s p a r a d e s i n k e y c it i e s , c h a n g e d t h e c l i m a t e o f p u b l i co p i n i o n t o w a r d o u r w a r e f f o r t a t t h a t t i m e . I n o t h e r w or d s , y o u h a da s i t u a t i o n i n w h i c h y o u g o t a c h a n g e - o v e r o f p u b l i c o p i n i o n n o t d e p e n d e n to n p e r s o n n e l b u t on e f f e c t i v e l y h a n d l i n g c e r t a i n b a s i c i d e a s t h a t a p p e a l e dt o t h e ~ . e r i c a n p u b l i c .

O r t a k e , f o r i n s ta n c e , s u c h a d y n a m i c s t e p a s th e p r o n o u n c e m e n t o fW i l s o n ' s 1 4 P o i n t s a t t h e M e t r o p o l i t a n O p e r a H o u s e - - 1 4 p o i n t s t h a t w e r ec a r e f u l l y w o r k e d o u t b y W a l t e r L i p p m a n n a n d s o m e o f th e y o u n g e r m e n l i k eC h a r l i e M e a r s w h o i s n o w e d i t o r o f t h e " T i m e s , " a n d t h e o l d " G e o g r a p h i cA s s o c i a t i o n . " T h o s e 1 4 p o i n t s h a d a t r e m e n d o u s e f f e c t a l l o v e r t h e w o r l da n d a l l t h e y d e p e n d e d u p o n w a s t h e e f e c t i v e n e s s a n d i n t e l l i g e n c e w i t hw h i c h M r . W i l s o n p r o p o s e d a n d p r o p o u n d e d t h e m in t h e M e t r o p o li t a n O p e r aH o u s e o n e d a y .

O r i f y o u t a k e s u c h a p r o n o u n c e m e n t a s t h e F o u r F r e e d o m s w h i c h h a da v i t a l i z i n g e f f e c t a l l o v e r t h e wo r l d , y o u w i l l g e t w h a t I m e a n w h e n It a l k o f d e v e l o p i n g p u b l i c s u p p o r t f o r a c o n c e p t o r a n i d e a .

T h o s e r e s u l t s d o n o t d e p e n d u p o n t h e m i m e o g r a p h m a c h i n e , t h e n u m b e ro f f e l l o w s w h o p e d d l e p i c t u r e s , o r t h e n u m b e r o f m e n w h o g e t o u t r e l e a s e s .T h e y d e p e n d r a t h e r t o a c e r t a i n e x t e n t u p o n a r e c o g n i t i o n o f f a c t s t h a tt h e R u s s i a n s h a v e a c c e p t e d . T h e R u s s i a n s t o d a y r e c o g n i z e t h a t s o - c a l l e dp r o p a g a n d a o r p e r s u a s i o n i s s o m e t h i n g t o i m p l e m e n t t h e i r n a t i o n a l p o l i c y .W h e n M r . S t a l i n i n a C h r i s t m a s D a y r e l e a s e r e f e r s t o a p e o p l e w h o w a n tp e a c e , i t i s a p i e c e o f p r o p a g a n d a o r i m p r o p ~ g an d a ; a n d y o u h a v e t h es o r t o f t h i n g t h a t I m e a n .

I a m n o t s a y i n g t h a t t h e A r m y , t h e N a v y , o r t h e A i r F o r c e s h o u l d n o th a v e w h a t m i g h t b e c a l l e d l i a i s o n o f f i c e s i n l o c a l c o m m u n i t i e s w h e r e t h e yn e e d t o m a k e a d j u s t m e n t s . A f t e r a l l , t o a d j u s t w i t h t h e p e o p l e i s af u n c t i o n o f a n y p h a s e o f g o v e r n m e n t . W h a t I a m s a y i n g i s t h a t b y a n dl a r g e , i t s e e m s t o m e , t h e r e s h o u l d b e r e m o v e d f r o m t h e p r e s e n t s i t u a t i o na n i n t er n e c i n e , c o m p e t i t i v e s t r u g g l e f o r p u b l i c s u p p o r t f o r g o al s a n d f o ro b j e c t i v e s t h a t h a v e n o t b e e n m a d e p a r t o f t h e t o t a l m o b i l i z a t i o n p r o g r a m .

A g a i n I c a n g i v e y o u t h e t y p e of t h i n g I m e a n i n a n o t h e r f i e l d . W eh a v e t o d a y i n t h i s c o u n t r y t h e b e l i e f t h a t f o r e i g n p o l i c y i s s o m e t h i n gt h a t w e c o n s c i o u s l y d o r e l a t i v e t o f o r e i g n c o u n t r i e s a n d t h a t t h e r e f o r ea l l a c t i v i t i e s r e l a t i n g t o f o r e i g n p o l i c y r e s t i n t h e S t a t e D e p a r t m e n t .

N o w I h a p p e n t o k n o w f r o m w o r k i n g w i t h t h e I n d i a n G o v e r n m e n t f o rs o m e t i m e t h a t t h e A m e r i c a n a t t i t u d e m o s t a d v e r s e l y a f f e c t i n g I n d i a ' so p i n i o n o f u s i s o u r a t t i t u d e t o w a r d n e g r o e s . S o i n th i s i n s t a n c e t h e

:3RESTRIC D

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148 , R E S T R I C T E Dm a t t e r o f f o r e i g n p o l i c y m o s t v i t a l i n w i n n i n g o v e r a c u l t u r i s t c o u n t r yi s r e a l l y o u r d o me s t i c p o l i c y . T h e p r o p a g a nd a i m p a c t o f t h e U n i t e dS t a t e s o n I nd i a, I w o u l d s a y , h a s b e e n g r e a t l y h e i g h t e n e d , n o t b y a nO f f i c e o f I n f o r m a t i o n o r b y th e p u b l i c r e l a t i o n s a c t i v i t i e s o f a n y o n eo f t h e d e p a r t m e n t s , b u t b y t h e f a c t t h a t t h e r e w e r e n o l y n c h i n g s i nt h e U n i t e d S t a t e s l a s t y e a r.

I n d e a l i n g w i t h t h e m a t t e r o f ~ n i n g p u b l i c s u p p o r t f o r a l l o fthe mobili zation efforts, I would try to deal with it from the viewpo intthat George Brandes, the philosopher, once expressed when he said:"It is useless to send armies agains t ideas." I woul d look for ideast h a t h a v e v i t a l i t y r a t h e r t h a n l o o k i n g f o r b r i g h t y o u n g m e n w h o c a n r u nm i m e o g r a p h m a c h i n e s .

COLONEL BARNES: Mr. Bernays, our time is running over. On behalfof the Commandant, the staff, and student body, I thank you for thisf ~ l e a n a l y s is a n d f o r t h e t h o u g h t a n d p r e p a r a t i o n y o u h a v e p u t i n t o i t.

1953--25o)s/sgh

16

R E S T R I C T E D D 5 7 f f 9 8